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Financial Arrangements Between the Commonwealth and New South Wales 1990-91

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Financial Arrangements Between the Commonwealth and New South Wales 1990-91 NEW SOUTH WALES FINANCIAL ARRANGEMENTS BETWEEN THE COMMONWEALTH AND NEW SOUTH WALES 1990-91 BUDGET PAPER No.4 CONTENTS Introduction ........................................ 2 Recent Developments in Intergovernmental Financial Relations .................................. 2 1989 Update Report of Relativities by the Commonwealth Grants Commission . 2 1990 Premiers' Conference and Loan Council . 3 Special Premiers' Conference on Microeconomic Reform . 10 3 Overview of Commonwealth Payments and Loan Council Allocations .............................. 17 4 General Revenue Funds .............................. 36 Financial Assistance Grants . 36 Identified Health Grants . 37 Special Revenue Assistance . 37 5 Specific Purpose Payments ........................... 39 Law, Order and Public Safety . 39 Education . 42 Health . 45 Social Welfare Services . 50 Housing and Community Services . 53 Recreation and Cultural Services . • . 57 Economic Services . 58 Other Purposes . 65 6 Loan Council Determinations .......................... 69 General Purpose Capital Funds . 69 Semi-Government and Local Authority Borrowings . 70 Global Borrowing Limits for 1990-91 . 71 7 Commonwealth Payments to or for Local Government ...... 73 General Purpose Payments . 73 Specific Purpose Payments . 74 Local Government Authority Borrowings . 77 Appendix: History of Federal State Financial Relations A Brief History ................................... 78 Commonwealth Grants Commission .................. 79 General Revenue Funds ........................... 79 Specific Pu~se Payments ......................... 82 Loan Council Determinations ........................ 82 Local Government General Purpose Payments .......... 84 Index ............................................. 85 LIST OF TABLES 2.1 Per Capita Financial Assistance Grants to the States, 1990-91 3 3.1 Gross Commonwealth Payments and Loan Council Allocations for NSW, 1985-86 to 1990-91 27 3.2 Net Commonwealth Payments to NSW, 1986--87 to 1990-91 29 3.3 Financial Arrangements between the Commonwealth and NSW, 1986--87 to 1990-91 30 4.1 1990-91 Financial Assistance Grants to the States 37 6.1 General Purpose Capital Funds to the States, 1990-91 70 6.2 Global Borrowing Limits of the States, 1990-91 72 7.1 Financial Assistance Grants to Local Government, 1990-91 74 Appendix - Financial Assistance Grants to the States, 1942-43 to 1989-90 80 LIST OF FIGURES 2.1 Real Own Purpose Outlays 4 2.2 Real Total Revenues 5 2.3 Comparison of Real Commonwealth own spending and payments to the States and Northam Territory 6 3.1 Comparison of Growth in Total Payments and Allocations to NSW and the Consumer Price Index 17 3.2 Total Payments and Allocations to NSW 18 3.3 Real Commonwealth own purpose outlays and payments to the States and Northam Territory 19 3.4 Proportion of Payments and Allocations to NSW for General and Specific Purposes 20 3.5 Proportion of Payments and Allocations to NSW for Recurrent and Capital Purposes 21 3.6 Financial Assistance Grants to NSW 22 3.7 Specific Purpose Recurrent Payments to NSW 23 3.8 Specific Purpose Capital Payments to NSW 24 3.9 General Purpose Capital Payments to NSW 25 3.1 0 Semi-Government and Local Authority Borrowings byNSW 26 -1- 1 INTRODUCTION Historically, Commonwealth payments and allocations to New South Wales have funded a significant, thou~h declining, proportion of the State Budget. In 1990-91 the Commonwealth w1ll fund some 39 per cent of New South Wales Budget expenditure. This compares with 47 per cent five years ago. In addition to this funding, the Commonwealth Government also controls the level of borrowings by State semi-government and local authorities (through Loan Council). Commonwealth payments and allocations to New South Wales take three main forms: • General revenue funds in the form of the financial assistance grant which is an unconditional payment to the State. • Specific purpose payments. These are conditional payments which are to be used for either specific recurrent or capital purposes. They may be either grants (non-repayable) or advances (repayable). In addition, advances may be at market related interest rates, at concessional rates, or interest-free. Specific purpose payments predominantly take the form of grants. • Loan Council allocations. These consist of both general purpose capital funds provided by the Commonwealth in the form of grants and borrowing allocations for State authorities and departments. Chapter 2 of this Budget Paper discusses the latest developments in intergovernmental financial relations. Chapter 3 provides an overview of payments and allocations and recent trends. Chapters 4 to 6 describe each of these forms of funding in turn. Chapter 7 describes the financial assistance provided by the Commonwealth to local government in New South Wales. The appendix describes the history of the various forms of payments made by the Commonwealth to New South Wales. It should be noted that in Chapters 2 and 3 references to aggregate levels for specific purpose payments (and consequently total net payments) take account of those payments for which the States only act as an agent for the Commonwealth. Payments in the areas of higher education, non-government schools and local government financial assistance grants are deducted from published Commonwealth specific purpose payments. In addition, growth figures for aggregate payments take account of the 1990-91 deduction from financial assistance grants to adjust for the Commonwealth decision to transfer the Bank Debits tax to the States, and the increased loan repayments resulting from the Loan Council decision on the takeover by the States of Commonwealth debt raised on their behalf. Unless indicated otherwise, amounts shown in this document are as shown in the Commonwealth Budget Paper Number 4 "Commonwealth Financial Relations with Other Levels of Government". Where different figures appear in other New South Wales Budget documents, this will generally reflect the different timing of estimates or accounting adjustments. -2- 2 RECENT DEVELOPMENTS IN INTERGOVERNMENTAL FINANCIAL RELATIONS Several recent developments in intergovernmental financial relations have important implications for New South Wales. The most significant of these developments include the Commonwealth Grants Commission 1990 Update Report, the 1990 Premiers' Conference-Loan Council meeting and the forthcoming Premiers' Conference on microeconomic reform. REVIEW OF RELATIVITIES BY THE COMMONWEALTH GRANTS COMMISSION The Commonwealth Grants Commission is required to report on relativities for the distribution of Qeneral revenue funds between the States and Northern Territory based on the princ1ple of fiscal equalisation. The distribution of funds "should enable each State to provide, without havinfJ to impose taxes and charges at levels appreciably different from the levels Imposed by the other States, QOvernment services at a standard not appreciably different from the standards prov1ded by the other States". In April 1990 the Commonwealth Grants Commission completed its 1990 Update review of the distribution of Commonwealth financial assistance grants between the States. Earlier full reviews were completed in 1981, 1982, 1985 and 1988. The Commission's 1990 Update Report is the second of a series of annual updates of relativities which will occur before the next full review in 1993. Annual updates are based on the methodology applying in the 1988 review. The terms of reference for the 1990 Update required the Commission to calculate relativities on the basis of both a three and five Y.ear review period. A final decision on the most appropriate relativities for the distnbution of general revenue grants between the States was to be a matter for the 1990 Premiers' Conference. New South Wales' assessed relativities in 1990-91 were higher under the five year review period option. The Premiers' Conference decision to fully implement the Commission's assessed relativities based on a five year review period has resulted in an increased share of general revenue assistance for New South Wales in 1990-91, but with lower shares in later years. Overall, the adoption of five year relativities is a net benefit to New South Wales. Special revenue assistance is to be provided in 1990- 91 to the Northam Territory to ensure the Territory is not faced with an unreasonably severe cut in total general revenue assistance. This assistance is expected to be $50.2 million and will reduce the pool of funds to be distributed according to the Grants Commission's relativities. -3- New South Wales benefited from five year relativities relative to those based on three years of data predominately because of the inclusion of the two earlier years (1984-85 and 1985-86) in the Commission's calculations. The inclusion of these earlier years favoured New South Wales due to a lower assessed revenue raising capacity in those years for payroll tax and stamp duty on property conveyances. In addition, these revenue raising areas were of less significance in the overall revenue raising context. New South Wales argued strongly that relativities should be based on the fiscal position of the States during the previous five years rather than three years. The use of five years of data will smooth out the impact on Commonwealth funding of cyclical changes in State own source revenues while at the same time ensuring that fiscal equalisation between the States is still being achieved. Relativities based on five years of data will assist in avoiding situations such as New
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